The LTA Journey: 15 Years On

Transcription

1 The LTA Journey: 15 Years On LEW Yii Der and ANG Chor Ing Abstract As 2010 marks the 15 th anniversary of the founding of the Land Transport Authority, Singapore (LTA), this paper takes a walk down memory lane to recount LTA s works and achievements. Since its inception, LTA s vision revolves around making Singapore a thriving, modern city which is people-centric, sustainable, and promotes economic growth. LTA uses its four key principles of governance long-term vision, sound economic principles, adaptability and responsiveness, and sustainability to formulate policies that will enhance the seamless travel experience of commuters in Singapore. Between 1995 and 2010, the Singapore economy measured in GDP has more than doubled in size and GDP per capita has increased by more than 50%. Furthermore, Singapore s population has already exceeded 5 million as compared to 3.5 million in Such rapid economic growth, a growing population and the rising affluence of Singaporeans have caused the demand for travel to burgeon to over 10 million journeys a day from 7.25 million in 1995 (Figure 1). With limited land resources, the Singapore Figure 1: Even with rising affluence and GDP per capita, wage increases outstrip fare increases ( ) Index Value Average Monthly Earnings Fare Adjustment Cap Overall Public Transport Fares Year Government faces the challenge of meeting rising expectations for better mobility within the constraints of a city-state, with many competing land uses. 15 years ago, the Government recognised the need for a single agency to coordinate a comprehensive and integrated suite of measures to meet the growing demand for travel (Sharp 2005). Key measures include expanding the land transport infrastructure, extending the range of public transport services, upgrading their quality of service, and managing private vehicle ownership and usage to keep traffic flowing smoothly. An integrated agency with a holistic and focused approach is integral for an excellent land transport system. This is where the story of Singapore s Land Transport Authority begins. On 1 September 1995, the Registry of Vehicles, the Mass Rapid Transit Corporation, the Roads and Transportation Division of the Public JOURNEYS November

2 Works Department, and the Land Transport Division of the Ministry of Communications, merged to form the Land Transport Authority (LTA). LTA is a statutory board under the Ministry of Transport (MOT) and is the agency in charge of all land transport issues. An integrated agency with a holistic and focused approach is integral for an excellent land transport system. This is where the story of Singapore s Land Transport Authority begins. To manage land transport policies, LTA has abided by four key principles of governance that are integral to public policy formulation in Singapore. They are: Long-term vision Harness economic principles Adaptability and responsiveness Sustainability First and foremost, LTA recognises the importance of having a long-term vision and proper planning of Singapore s transport network. Hence, LTA works closely with other government agencies to achieve integrated land use and transport planning, which is crucial given Singapore s limited size and rapid pace of development. Secondly, sound market-oriented solutions are pivotal for a quality and efficient transport system. Ensuring that sound economic principles underpin policies that manage private transport demand, public transport industry structure, and public transport financing, has maximised the efficiency of Singapore s transport network and ensured value-for-money capital investments. The fare cap formula which motivates public transport operators to be more efficient, and the decision to inject greater contestability into the public transport industry through competition for the market 1, are two examples of marketoriented solutions. LTA is also mindful of the need for constant innovations to ensure continued relevance and responsiveness to changing conditions; and finally, LTA strives for Singapore s transport solutions to be economically, socially and environmentally sustainable. The fare cap formula which motivates public transport operators to be more efficient, and the decision to inject greater contestability into the public transport industry through competition for the market 1, are two examples of market-oriented solutions. A World Class Land Transport System The pressing challenge for LTA in its initial years was for the four organisations to coalesce into an integrated team. The LTA White Paper (Land Transport Authority 2006), published in January 1996, crystallised the organisation s team spirit. It was the blueprint for Singapore s future land transport system, and became LTA s manifesto. LTA s vision was reflected in its title To Build a World Class Land Transport System, and the four core principles of 50 JOURNEYS November 2010

3 governance were imbued in the White Paper s key strategies. The strategies were: Integrating land use and transport planning Developing a comprehensive road network and harnessing technology to maximise network capacity Managing demand for road transport Providing a quality public transport system Integrated land use and transport planning Singapore s small size and limited land reinforces the need to comprehensively plan for the long term (Yee and Chin, 2005). The Concept Plan, which is reviewed every 10 years, is Singapore s strategic land use and transport plan to guide development in the next 40 to 50 years. This long-term plan ensures there is sufficient land to meet anticipated population and economic growth, hence providing Singaporeans with a good living environment. LTA works closely with various agencies such as the Urban Redevelopment Authority, the Housing and Development Board, and JTC Corporation to integrate land developments with transport. This comprehensive long-term planning and integrated whole-of-government approach reinforces the principle of being forward looking to achieve a clear vision of the future city that Singapore wants to become. During the 2001 Concept Plan Review, where long-range plans were examined, the Ministry of Transport and LTA led the Transportation Sub- Committee. 2 The sub-committee developed the Road and Rail Master Plans to cater for the long-term travel demand to support projected population growth in the future. This review identified the medium-term need for a new North-South Expressway to serve the growing developments in the North-South corridor. Also, new MRT lines, such as the Downtown Line, the Thomson Line and the Eastern Region Line were identified to support the growing demand for public transport. These new lines will form a closer grid network in the high travel demand Central Area, and thus, enhance accessibility and encourage travel by public transport. In addition, a new coastal expressway, now called Marina Coastal Expressway, was identified along the fringe of the new downtown in Marina South to serve the growing developments there. Before embarking on these costly transport projects, LTA would undertake detailed transport modelling and studies to ensure that they are economically viable. In addition, rail infrastructure projects are implemented only if they are considered viable in terms of financing, ridership, as well as realistic and affordable fares. Thus, sound, market-oriented solutions derived from detailed transport modelling and studies have maximised efficiencies of Singapore s transport network and ensured value-for-money capital investments. Developing a comprehensive road network and harnessing technology to maximise network capacity Over the last 15 years, LTA has expanded our road network from 2,972 km in 1995 to 3,356 km today. Vehicular underpasses were constructed at many of the major junctions, particularly along the Outer Ring Road System 3, to facilitate more efficient JOURNEYS November

4 traffic flow. The opening of the Queensway extension to the Ayer Rajah Expressway (AYE) and Queensway/Commonwealth Avenue Interchange, for instance, enabled motorists to bypass heavily utilised junctions to access the AYE. The increase in road capacity, particularly along heavy traffic corridors, has ameliorated congestion and kept more than 95% of the expressway and 90% of the arterial road traffic within the optimal speeds of 45km/h to 65km/h and 20km/h to 30km/h respectively. The Fort Canning Tunnel, opened in 2007, was based on LTA s collaboration with the Urban Redevelopment Authority s plans to mitigate traffic at the Civic District while preserving the historical and environmental significance of Fort Canning Park (Figure 2). Figure 2: Fort Canning Tunnel adopting environmentally sustainable processes in the planning and development of transport infrastructure To maximise road network capacity, LTA continued to invest in various innovative Intelligent Transport Systems (ITS). The Expressway Monitoring and Advisory System (EMAS) launched in 1998, for example, performs live-video traffic surveillance, incident detection and traffic advisory functions. EMAS also informs motorists of prevailing traffic conditions through strategically located electronic signboards and radio broadcasting. ITS also provides motorists with timely traffic information, thus enabling them to plan their journeys more effectively. To illustrate, GPSenabled Traffic Scan system, implemented in 1999, collects information on traffic speeds on major roads by relying on taxis equipped with GPS readers which capture information on their locations and speeds. This information would then be disseminated to motorists, therefore helping them decide the best routes to their destinations. Other ITS devices that provide timely quality information to motorists are the Junction-eyes (J-Eyes), i-transport System, Traffic Prediction Analytics and the Parking Guidance System. Much was also done to provide greater convenience to motorists and public transport users in the form of e-services. LTA s One. Motoring Portal launched in 2001 provides a one-stop channel for the public to access motoring-related information anywhere and anytime. Among other things, the portal highlights latest news releases from LTA as well as real-time traffic news. The launch of e-services@one. Motoring makes available a series of self-help online services, such as renewal of road tax, payment of vehicle transfer fees and bidding for vehicle registration numbers, thereby reducing the need for the public to physically queue at LTA premises. Managing demand for road transport Traffic congestion increases business costs and adversely affects our quality of life. Therefore, 52 JOURNEYS November 2010

5 Singapore adopts the user pays principle in managing road congestion by charging motorists with the marginal cost they impose on others. Marginal social costs include both marginal private costs cost of resources used directly by motorists (such as fuel and other operating costs) in making their trip and marginal external costs, such as congestion, noise and air pollution that negatively impact others and the environment. Over the last 15 years, LTA has managed road usage through innovations and improvements in travel demand management measures. One of the earliest road congestion pricing schemes in the world, the Area Licensing Scheme (ALS) 4 was implemented in 1975 around the Central Business District (CBD). Traffic congestion increases business costs and adversely affects our quality of life. Therefore, Singapore adopts the user pays principle in managing road congestion by charging motorists with the marginal cost they impose on others. Introduced in 1998, the Electronic Road Pricing (ERP) system replaced the manual ALS as an electronic toll collection scheme (Phang and Toh, 2004). It is the first of its kind in the world and has successfully kept Singapore s roads relatively smooth flowing (Figure 3). Another demand management measure which uses pricing to allocate scarce resources is the Vehicle Quota System (VQS) (The Vehicle Quota System Review Committee 1999). It was introduced in 1990 to ensure that the Figure 3: Effect of ALS/ERP Index Value Traffic Volume to City (AM Peak) ALS implementation (June 1975) Vehicle Population Car Population ERP implementation (Sept 1998) (Before ALS) growth rate of vehicles can be sustained by road capacity. Under the VQS, motor vehicles are classified into several categories and the quota for each category would be determined by LTA. Would-be-buyers are required to bid for a Certificate of Entitlement (COE), a licence which will allow them to register their new vehicles. Over the years, LTA has reviewed and enhanced the VQS to better meet the expectations of the motoring public and the increasing demands for vehicle ownership. The online COE Open Bidding System, for instance, was implemented in 2001 to provide greater transparency so bidders can make informed decisions when submitting their bids. This has resulted in smaller fluctuations of month-tomonth COE quota premiums. The VQS/COE control vehicle growth by predetermining a rate that is sustainable and the ERP prices the scarce road resources to give effect to the economic rationale of motorists internalising congestion externalities. Providing a quality public transport system Promoting public transport as a choice mode has been an ongoing process since JOURNEYS November

6 Figure 4: Integrated Land Transport System Woodlands MRT station integrated with Singapore s first underground bus interchange tickets, with the Enhanced Integrated Fares System, which uses EZ-Link contactless smart cards (Figure 5). This improvement caters to the expanding MRT network and facilitates speedier boarding times on buses and trains. Figure 5: Contactless ez-link cards LTA s inception in The hub-and-spoke model where buses and the LRT serve as feeders to bring people to transfer hubs, i.e., MRT stations or bus interchanges, is a key initiative that LTA has built upon to enhance the seamlessness of commuters journeys and increase the efficiency of the public transport network (Figure 4). In 2003, the 20 km North East MRT Line (Land Transport Authority 2003) and the Sengkang LRT East Loop were opened to serve the growing population along the northeast corridor, including high-density residential estates in Sengkang and Punggol. The West Loop of Sengkang LRT and the Punggol LRT were subsequently opened in In order to facilitate travel from Changi Airport to the city-centre, LTA opened the Changi Airport MRT station in 2002, as part of the East- West line. In addition, considerable improvements have been made to the public transport fare system. In 2002, LTA replaced the Integrated Ticketing System, which used magnetic strip plastic A People-Centred Land Transport System The initiatives listed in LTA s White Paper were successfully implemented in the 10 years after its launch, and contributed to improving the land transport system and meeting the growing travel demands of the population (May 2004). As part of the continual process of improvements, LTA embarked on a comprehensive Land Transport Review in October 2006 to evaluate its achievements and develop a new roadmap to address future land transport requirements. More than 4,500 people from various backgrounds contributed their time, feedback and ideas to the review, culminating in the Land Transport Master Plan (LTMP) which LTA unveiled in 2008 (Land Transport Authority 2008). Continued review, re-thinking and renewing of policies enable LTA to meet future changing needs and requirements, as well as to improve performance. 54 JOURNEYS November 2010

7 The launch of the LTMP marks a major milestone in LTA s vision to develop a more people-centred land transport system. The LTMP aims to better cater to the mobility needs of the population and reiterates three key strategies that will shape our land transport policies and development for the next 10 to 15 years. They are: Making public transport a choice mode Managing road usage Meeting the diverse needs of the people In order to make public transport a choice mode, LTA will continue to provide a quality public transport system and integrate land use and transport planning. Managing road usage, our second LTMP strategy, reinforces the White Paper initiatives of developing a comprehensive road network and harnessing technology to maximise network capacity, and managing demand for road transport. The third key strategy meeting the diverse needs of the people underscores LTA s commitment to develop an integrated and efficient land transport system that meets the needs of the diverse groups in our society. Making public transport a choice mode Two key changes to the public transport scheme as a result of the LTMP are: LTA assuming the role of central bus planner; and Distance-based through-fares Central bus planning Since its establishment, LTA has been responsible for planning and developing the MRT network and major road projects. In 2009, LTA took on the additional role of central bus planning, with the Public Transport Council retaining regulatory oversight of bus services. LTA s objective is to plan the public transport network in a holistic manner, focusing on improving the total journey experience of the commuters. One emphasis is on integrating buses seamlessly into the overall public transport system in line with the objective of developing an integrated multi-modal public transport network. Distance-based through-fares The distance-based through-fare structure for public transport was implemented by LTA on 3 July 2010 with the objective of increasing flexibility and convenience for commuters. Distance Fares ensures that if commuters travel the same distance by direct or transfer journey, they pay the same fare. This enables commuters to choose the best way to get to their destination without worrying about having to paying extra if they were to make a transfer. LTA s objective is to plan the public transport network in a holistic manner, focusing on improving the total journey experience of the commuters. One emphasis is on integrating buses seamlessly into the overall public transport system. JOURNEYS November

8 Enhancing commuters experience Furthermore, heavy investments were made to provide high quality public transport service in terms of reliability, comfort and convenience. LTA has improved its EZ-link system and implemented measures, such as key bus services maps, premium bus services, upgraded bus stops and realtime bus information panels, for a better and more comfortable public transport journey. LTA s PublicTransport@SG portal also enhances commuters experience by providing them with the convenience of accessing both static and live public transport information across all operators and modes. The portal also features the latest public transport-related news and information, such as public transport promotion campaigns and initiatives. Figure 6: Bus Priority Measures (a) Full-day bus lane (b) Mandatory Give Way to Buses scheme In December 2008, LTA converted some normal bus lanes to full-day bus lanes.5 These have improved bus speeds along affected roads by an average of 7%. Also piloted in 2008 was the Mandatory Give Way to Buses scheme on 22 bus-bays, which resulted in a reduction of total bus journey time of up to 7% along the related roads. LTA is extending the scheme to cover 202 bus-bays island-wide by end 2010 (Figure 6). vehicle population growth rate from 3% to 1.5% from Notwithstanding the constraints on road expansion, LTA will continue to construct roads to serve new developments whenever it makes economic sense. LTA is now constructing the 5 km Marina Coastal Expressway which will be completed by 2013, and will start on the proposed 21 km North-South Expressway later in the same decade. Managing road usage Due to increasing pressures on Singapore s scarce land resources, road expansion rate over the next 15 years is likely to reduce from 1% per annum (p.a.) to about 0.5% p.a. To ensure that growth in the vehicle population is sustainable, LTA has tightened the annual To better manage road usage, LTA needs to enhance the current gantry-based road charging system. While the current ERP technology has served Singapore well, the continual addition of physical gantries to cope with increasing demand for road use will not be tenable in the long term. LTA, therefore, 56 JOURNEYS November 2010

9 Highlights LTA 15 Years ) Land Transport Authority was formed. 2) Bidding for Certificate of Entitlement (COE) goes electronic ) Woodlands MRT station integrated with Singapore s first underground bus interchange. 2) Opening of Tampines Expressway (TPE) Phase III, the first expressway completed since the formation of LTA ) Opening of Seletar Expressway. 2) Launch of Electronic Road Pricing system (ERP), the first of its kind in the world ) Introduction of the first Light Rail Transit (LRT) system at Bukit Panjang ) Traffic SMART displays real-time traffic conditions on the internet ) Launch of ONE.MOTORING portal to provide one-stop services. 2) Launch of online COE open bidding system. 3) Opening of Dover MRT station, first station to be built over an operating rail line without disruption to train services ) Opening of Singapore s first air-con bus interchange at Toa Payoh. 2) Magnetic fare cards replaced by contactless ezlink cards. 3) Older MRT stations upgraded to be disabled-friendly. 4) Opening of the Changi Airport MRT extension. 2) Introduction of Art in Transit programme on NEL. 3) Tactile guidance systems introduced on NEL for the visually-impaired. 4) Sengkang LRT, the first driverless system in a new town development ) Full-day bus lane scheme implemented along Orchard Road. 2) Opening of Punggol LRT ) Launch of the LTA Academy ) Opening of Fort Canning Tunnel. 2) Introduction of LTA Traffic Marshals. 3) Launch of integrated real-time bus arrival information panels and key bus services maps ) Launch of the Land Transport Masterplan (LTMP). 2) Introduction of Mandatory Give Way to Buses scheme. 3) Full opening of the Kallang-Paya Lebar Expressway (KPE), the longest underground expressway in South-East Asia. 4) Launch of LTA Traffic News on radio. 5) Launch of PublicTransport@SG portal ) Launch of new corporate positioning We Keep Your World Moving. 2) Opening of Circle Line (CCL) stage 3. 3) Introduction of half-height platform screen doors at MRT stations to enhance safety. 4) Opening of Boon Lay MRT extension ) Launch of revised Off-Peak Car (OPC) scheme. 2) Opening of Circle Line (CCL) stages 1 and 2. 3) Launch of Distance Fares ) Opening of the North-East Line (NEL), Asia s first automated heavy rail underground system. JOURNEYS November

10 needs to look ahead to find a more effective system of congestion management that reduces dependence on physical gantries. Based on its preliminary evaluation, LTA has identified possible options that are based on the Global Navigation Satellite System (GNSS) technology. Meeting the diverse needs of the people Social inclusiveness is an integral element of a people-centred land transport system. In order to enhance the accessibility of the public transport system, LTA works closely with relevant organisations, such as the Handicaps Welfare Association, to identify different needs and the requisite facilities to better cater to them. Consequently, LTA has retrofitted MRT stations with lifts and tactile guiding systems, and buses with wheelchairaccessible mechanisms. Furthermore, since December 2006, LTA has implemented barrier-free routes within a 400m radius of all MRT and LRT stations. To date, 30% of all public buses are wheelchair-accessible and this percentage will steadily increase as the bus fleet is renewed. Barrier-free infrastructure development has also been completed at 3,800 or about 84% of bus stops. LTA aims to have all pedestrian walkways barrier-free by the end of 2010, and by 2011, 70% of MRT stations are to have at least two barrier-free routes. LTA constantly engages the community through feedback and suggestions from transport stakeholders and members of the public. In March 2008, LTA established a Land Transport Community Partnership Division, with dedicated teams assigned to each constituency to consult them on day-today road and traffic management issues. This enables LTA to better understand the public s perspectives and address their priorities and concerns. Environmental sustainability is just as important to LTA. It is our responsibility to take good care of our environment for future generations to come. With cycling becoming increasingly popular in recent years, LTA has embarked upon a National Cycling Plan by progressively putting in place dedicated offroad cycling paths in five HDB towns. This is to promote cycling as an environmentally friendly and healthy transport option for intra-town To date, 30% of all public buses are wheelchair-accessible and this percentage will steadily increase as the bus fleet is renewed. Barrier-free infrastructure development has also been completed at 3,800 or about 84% of bus stops. travel to transport nodes and key amenities. LTA has also collaborated with NParks to link cyclists to transport nodes through the nationwide Park Connectors Network. Furthermore, LTA has been working closely with the Urban Redevelopment Authority and National Parks Board to implement a network of cycling paths in Marina Bay, as one of the initiatives proposed under the Sustainable Development Blueprint announced in 2009, for an overall sustainable transport system in Marina Bay. Foldable bicycles are also allowed onboard 58 JOURNEYS November 2010

11 the MRT and buses during off-peak hours. LTA has worked closely with other agencies to promote cleaner and more energy-efficient vehicles, such as hybrid cars. LTA s initiatives for a more environmentally sustainable and socially inclusive land transport system work towards the good governance principle of sustainability. Conclusion After 15 years of delivering many of its goals, LTA will continue to embark on new exciting initiatives to provide a user-friendly, efficient and cost-effective land transport system for everyone in the next 15 years. As mentioned by Mr Raymond Lim, Minister for Transport, Ultimately, our aim is for a land transport system that places people at its heart. (Figure 7) LTA continues to uphold this principle by collaborating with agencies and industry players, and most importantly, engaging the community to ensure that we hear and address every commuter s needs. Nevertheless, the four guiding principles of governance long-term vision, sound economic principles, adaptability and responsiveness, and sustainability remain core to LTA s decision making process. Having the courage to confront difficult issues and make tough decisions is essential for the greater good of society. LTA is committed to make the vision for a people-centred land transport system a reality. Figure 7: Moving beyond transport as a mere mobility tool by endowing MRT stations with a distinct identity Acknowledgement The authors would like to thank Ms Amy Hing, Deputy Chief Executive of the Land Transport Authority, Mr Jeremy Yap, Group Director of the Policy and Planning Group, Mr Choi Chik Cheong, DD of the Content Development & Documentation Division, and Mr Gabriel Wong, Researcher, LTA Academy for their contributions to this paper. Notes 1. Competition for the market happens when different operators compete for the right to run the same routes exclusively, thus allowing for competition in a natural monopoly environment. 2. The Concept Plan is Singapore s long-term landuse and transport development plan. It spells out the long-term development intentions for Singapore and is reviewed every 10 years. 4. Introduced in 1975, the ALS charged motorists for entering the Restricted Zone in the Central Business District (CBD). This was the first successful urban traffic congestion pricing scheme to be implemented in the world. 5. Normal bus lanes apply during peak hours on weekdays while full-day bus lanes apply from 7.30am to 8pm from Mondays to Saturdays. 3. The Outer Ring Road System is a network of major arterial roads that forms a ring along the towns outside the city. JOURNEYS November

12 References Land Transport Authority White Paper: A World Class Land Transport System. Singapore. Land Transport Authority Getting there The Story of the North East Line. Singapore. Land Transport Authority LTMasterplan: A People-Centred Land Transport System. Singapore. May, Anthony D. January Singapore: The Development of a World Class Transport System. Transport Reviews 24(1): Sharp, Ilsa The Journey. Singapore: SNP. The Vehicle Quota System Review Committee Report of the Vehicle Quota System Review Committee, submitted to Ministry of Communications, Singapore, March Yee, Joseph, and Chin Kian-Keong An integrated land transport system the Singapore experience. Traffic Engineering & Control (TEC) Magazine, Feb Phang, Sock-Yong, and Rex S. Toh Road Congestion Pricing in Singapore: 1975 to Transportation Journal Spring 2004, 43, 2: Lew Yii Der is the Group Director of the Corporate Planning and Research Group in the Land Transport Authority, Singapore. His current portfolio includes spearheading the corporate development and strategic research and expanding the research and training capacity of the LTA Academy. Mr Lew has been with the LTA since its formation in 1995, holding various management positions. He holds a first class honours degree in Civil Engineering from the National University of Singapore and a Masters in Public Management from the Lee Kuan Yew School of Public Policy. Ang Chor Ing is an Executive in the Content Development and Documentation Division of the Land Transport Authority, Singapore. She has a Bachelor of Commerce from the University of Melbourne, Australia, and a Master of Arts in International Studies from the University of Durham, UK. Ms Ang is currently involved in expanding LTA s repository of institutional knowledge through the research, case writing and documentation of the three key programme areas of the LTA Academy which are namely: Centre for Transport Policy and Planning, Centre for Transport Infrastructure Development and Management, and Centre for Transport Innovations and Systems. 60 JOURNEYS November 2010